The Private School Revolution in Bihar: Findings from a survey in Patna Urban

A pathbreaking study or private school ecosystem in an entire Tier II city of India. Includes a comprehensive census and survey of schools, India's first random sample household survey to understand factors affecting school choice decisions, India's first geo-mapping of more than 1200 schools in a city to understand distribution patterns, analysis of implications of findings for India's landmark Right to Education Act and recommendations for policy makers.

The Private School Revolution in Bihar
Findings from a survey in
Patna Urban
E.G. West Centre
Newcastle University
King George VI Building
Newcastle Upon Tyne
NE1 7RU
England
www.ncl.ac.uk/egwest
Baladevan Rangaraju
James Tooley
Pauline Dixon
India Institute
M-111, First Floor
Saket
New Delhi 110017
India
www.indiaI.org
ISBN 978-81-923766-0-8
Foreword by Gurcharan Das
castellar font
An
study with
Baladevan Rangaraju
Professor James Tooley
Dr Pauline Dixon
The Private School Revolution in Bihar
Findings from a survey in Patna Urban
Copyright ÂŠ 2012 by India Institute/EG West Centre, Newcastle University
ISBN 978-81-923766-0-8
Cover design by Pooja Badola
Printed at: Bosco Society for Printing & Graphic Training, New Delhi
India Institute
M-111, First Floor
Saket
New Delhi 110017
Phone / Fax: +91 11 2956 2301
Email: indiaI@indiaI.org
Website: www.indiaI.org
Table of Contents
Acknowledgements.............................................................................................................. vi
Foreword............................................................................................................................ viii
Executive Summary...............................................................................................................1
Introduction...........................................................................................................................3
Methodology.........................................................................................................................4
Constraints............................................................................................................................5
Types of Schools in Bihar.......................................................................................................6
Unrecognised schools in Bihar..............................................................................................6
Available estimate of unrecognised schools...............................................................6
Dominant perception..................................................................................................7
Results...................................................................................................................................9
Number of Schools....................................................................................................10
Enrolment.................................................................................................................11
Gender issues............................................................................................................13
Teachers and students..............................................................................................13
Attendance & Teaching Activity................................................................................14
Recognition Status....................................................................................................14
Fees/affordability and Fees/recognition status.........................................................16
Year of Establishment...............................................................................................17
Medium of instruction..............................................................................................18
Average teacher salaries...........................................................................................18
School facilities.........................................................................................................20
Distribution of private schools............................................................................................23
Findings.....................................................................................................................24
iii
Factors affecting parentsâ&#x20AC;&#x2122; choice of school.........................................................................27
Primary reasons for choosing a private school.........................................................28
Primary reasons for choosing a government school.................................................29
Implications of findings for Right to Education Act (RTE)....................................................31
Implications for Sections 19(2) & 19(4).....................................................................32
Implications for Section 12 (1)(C)..............................................................................35
Recommendations..............................................................................................................37
Technical notes....................................................................................................................38
End notes.............................................................................................................................40
References...........................................................................................................................42
Annexure.............................................................................................................................44
Table A1 Private schools by type in 1km radius of government schools...................44
Figure A1 Distribution of schools by type - GPS map of Central Patna.....................50
Figure A2 Distribution of schools by type - GPS map of North West Patna..............51
Figure A3 Distribution of schools by type - GPS map of Patna City..........................52
Figure A4 Distribution of schools by type - GPS map of South West Patna..............53
Relevant Sections of RTE...........................................................................................54
iv
List of Tables and Figures
Table 1
Number of schools, Patna Urban....................................................................... 10
Table 2 Number of private unaided schools by affordability.......................................... 10
Table 3 Enrolment by school management type............................................................ 11
Table 4 Enrolment by school management type, including affordability of
private unaided schools...................................................................................... 12
Table 5 Comparative enrolment in government and private schools, by grades............ 12
Table 6
Gender in school management type.................................................................. 13
Table 7
Pupil/teacher measure....................................................................................... 14
Table 8
Teacher attendance ........................................................................................... 14
Table 9
Teacher activity................................................................................................... 14
Table 10 Recognition status.............................................................................................. 15
Table 11 Recognition status correlated with affordability................................................ 15
Table 12 Fees and affordability......................................................................................... 16
Table 13 Recognition and fees.......................................................................................... 16
Table 14 Year of Establishment, recognition and affordability.......................................... 17
Table 15 Medium of instruction and affordability............................................................ 18
Table 16 Average teacher salaries, recognition and affordability..................................... 19
Table 17 Library facilities.................................................................................................. 20
Table 18 Computer and science lab.................................................................................. 21
Table 19 Drinking water.................................................................................................... 21
Table 20 Separate toilets for boys and girls...................................................................... 21
Table 21 Effect of RTE on fees........................................................................................... 33
Table 22 Achievement levels of Patna Urban by management type - Reading................ 34
Table 23 Achievement levels of Patna Urban by management type - Maths................... 34
Table 24 Achievement levels of Patna Urban by management type - English.................. 34
Table 25 Grade 1 strength................................................................................................. 36
Table 26 Private schools in survey.................................................................................... 38
Table 27 Enrolment for private unaided schools, n=1,000............................................... 39
Table 28 Enrolment for private unaided schools, extrapolated to 1,224 schools............. 39
Figure 1 Private schools establishment trend..................................................................... 17
Figure 2 % of government schools with count of private schools in a 1 km radius............. 25
Figure 3 Distribution of private schools around government schools in Patna Urban ...... 26
Figure 4 Reasons for parental choice of private school....................................................... 29
Figure 5 Reasons for parental choice of government school.............................................. 30
v
Acknowledgements
This study would not have been possible without the whole hearted support and
encouragement of various people. We would like to register here our gratitude to them, not
in any specific order.
To the Bihar Ministry of Human Resources Development for encouraging and authorising us
to conduct the study.
To Professor Vinay Kant and Professor Daisy at the East West Educational Society, Patna,
for sharing their knowledge of Patnaâ&#x20AC;&#x2122;s educational history and for allowing us to use their
premises as one of our field offices.
To Dr Wilima Wadhwa of ASER Centre for valuable inputs on urban sample frames.
To Mr Rajeev Saraf of Lepton Maps for providing us with requisite training and software, and
lending equipment for geo-mapping the schools.
To Dr Uma Gengaiah and Dr Vanishree Joseph of the School of Gender and Development
Studies, IGNOU, for independently auditing the data.
To Mr Rishi Kishore Sharma for arranging accommodation at ISKCON Patna, which also
doubled as our office during the initial days of the project.
To a most enthusiastic field team, which scouted lane by lane the entire city of Patna for
months to locate, survey and map every private school possible.
-Authors
vi
Special thanks to
Project Manager
Kush Verma
Field Coordinator
Chitralekha Kumari
Tech Support
Paras Gupta
Amit Dhankar
Sudhir Kumar Jha
Field Research Associates
Amit Kumar
Abhishek Kumar
Abinash Narayan
Ajit Kumar
Anirudh Kumar
Eugene Gomes
Jayshankar Prasad
Kumar Sashi
Martin Gomes
Manoj Vincent Marandi
Rajiv Kumar
Ravi Kumar
Sajjan Prabhat
MD Talib
MD Asif
Sonu Kumar
Vikram Kumar
GPS Surveyors
Saurabh Sharan
Raj Ranjan
Data Entry & Audit
Abhishek Kumar
Hemant Kumar
vii
Foreword
The starting point for sound policy making is good and honest information. The India
Institute is, thus, to be commended for making a comprehensive census of all schools
in the city of Patna, capital of Bihar, with the approval of the government of Bihar.
This study of all 72 wards of Patna Urban has plotted the location of each school
using Global Positioning System technology and also measured attitudes of parents to
education through a random sample survey of 360 homes.
This study concludes that official DISE data (District Information System for Education)
excludes three quarters of the schools in the city and 68% of school going children.
Government statistics show that there are only 350 schools in Patna; this census reveals
that there are 1,574 schools. Thus, 2,38,767 school going children out of 3,33,776
students are missing from the official data. Mostly the missing schools are unrecognised
schools, which charge very low fees and cater to the poor and lower middle class, and
are often clustered around government schools. The household survey confirms nearly
70% of the parents prefer to send their children to private unaided schools.
The reason for the success of Patna’s private unaided schools may be, in part because
only 10% of teachers are absent in private schools, and that they have 21-26 students
per teacher, compared to 42 students per teacher in government schools. Although
this study does have comparable teacher absence data in government schools, an
earlier, national study by Michael Kremer and others from Harvard University showed
that only 61% teachers were present in Bihar’s government schools. To round out this
explanation, ASER’s recent study in one ward of Patna (number 60) shows that children
in private schools had significantly better results in math and reading than government
schools.
No one knows how many unrecognised schools exist in India. India Institute, with the
EG West Centre of the Newcastle University, has made a start and provided an answer
for the city of Patna. What has been found in Patna is unlikely to be different from
many parts of India. Given the findings of this study, it would be immoral to close
down low cost private unrecognised schools as mandated by the new law. The Right to
Education Act is a landmark legislation created by well meaning persons. It has many
fine features but its great weakness is to totally neglect outcomes. More than half our
children in class 5 cannot read nor do simple arithmetic that is expected of them in
class 2, as the ASER reports show year after year.
India must be unique in the world for wanting to close down schools that serve the
poor. What would be admired elsewhere as an example of entrepreneurial initiative (or
jugaad as we say) has been made illegal by India’s educational establishment. These
viii
schools typically charge fees of less than Rs 300 per month but they do not get recognition
because they fail to meet all the standards—for example, they don’t have a large enough
playing field or they cannot pay the minimum government teacher salary of Rs 20,000 a
month as specified by the Sixth Pay Commission. In order to comply with standards, these
schools would have to raise fees three to four times, and then the poor would not be able
to afford them.
Unrecognised private schools, which mostly cater to the poor in the slums and villages of
India, have been under threat for some time. With the passage of the Right to Education
Act the threat is now real. Unrecognised private schools are successful because teachers
are accountable to parents who can move their child to a competing school if they are not
satisfied. In a government school there is little accountability as teachers have permanent
jobs with salaries and promotions unrelated to performance.
Why would parents pay hard earned income when a child could be educated free and get
a free mid-day meal in a government school? The government’s answer is that parents are
duped by ‘unscrupulous elements’. You can fool some people some of the time, they say,
but not all the people all the time. Lakhs of children in Patna’s private schools would not
be there unless they meet a genuine need. The irony is that while sending its own children
to private schools, the establishment stridently opposes a similar choice for the poor.
The governments of many states make it difficult for private schools to function. I was
baffled to learn about how often inspectors in Hyderabad visit unrecognised private
schools. It is not because of an unusual dedication to standards but to be ‘made happy’,
as one private school owner put it. Schools have to bribe to keep inspectors from closing
them down. Hence, I believe that the main impact that the Right to Education Act will
have will be to raise the bribe required to keep inspectors ‘happy’. This in turn will force
schools to raise school fees, and the burden will fall on the poor.
The answer is not to close down unrecognised schools but to understand their situation.
Since they cater to the poor, there could be a graded system of recognition. If we can
have a first and a second class in the train, why not officially designate ‘first’ and ‘second’
categories for schools? Since real estate is expensive, don’t insist on a play ground the size
of a football field but allow budget schools to operate with a smaller play area. This India
Institute study offers some useful recommendations at the end. One of these is to offer
official recognition to schools based on how well children perform in simple tests. Our
first priority must be to reform government schools, but until that happens, why penalize
the poor by taking away one choice they have found for giving their children some sort
of future?
Gurcharan Das
ix
Executive Summary
It is common knowledge that private unaided schools, including low cost schools, are
“mushrooming” across the country. But knowledge of the sector is very limited, as very
few studies have adequately mapped the phenomenon. In particular, a study that analyses
the complete private schools’ landscape within one city has never before been carried out.
Conducting a thorough on-the-ground census of private unaided schools in Patna Urban,
this study attempts to fill some of the gaps in our knowledge.1 By focusing on a previously
unstudied phenomenon in an entire Tier II city, the findings of this study will have implications
for the entire country in the wake of the regulations for private schools in the Right to
Education (RTE) Act.
The official data shows private education as an entirely insignificant part of the educational
landscape in Bihar: The District Information System for Education (DISE) data for 2008-2009
estimates a total of 93 private schools for the whole of Bihar. Provisional data for 2009-10
suggest 14 private schools in the entire state. Our study found that these figures grossly
underestimate the true picture. In Patna Urban alone, our study team visited 1,224 private
unaided schools – and even this is a lower bound on the true number, as of course we cannot
be sure that we visited all of the schools. Despite the apparently insignificant official number
of such schools, in fact, private unaided schools make up the vast majority of schools in Patna
– 78%, compared to only 21% of government schools and 1% of private aided.
Classifying private unaided schools into three categories, based on their monthly fee levels,
our analysis shows that 69% of private unaided schools are low cost, 22% affordable, and only
9% higher cost. That is, the vast majority of private unaided schools found in Patna Urban
were low cost, charging fees less than Rs. 300/- per month. These schools were not found
to be operating in secluded pockets of the city or in the fringes alone. In fact, plotting the
location of 1,182 private schools and 111 government schools using GIS technology, we found
that there existed hardly a road or a street in Patna without a private school. Significantly,
the number of private schools within one kilometre radius of a government school ranged
between 9 and 93.
Concerning enrolment, using the figures we found in the private schools and trusting those
supplied by government, we suggest fully 65% of schoolchildren in Patna attend private
unaided schools, with just 34% attending government schools. Moreover, classifying private
school attendance by fee bands reveal that there are roughly as many children in low cost
private schools as there are in government schools, (32% compared to 34%). That is, nearly 1
out of 3 children in Patna Urban attend a low cost private school.
1
These findings are quite revolutionary. Until now, there has been no data on schools in Patna
that has included all private unaided schools. Since the DISE data do not include unrecognised
schools, this study has found that the existing data exclude three quarters of the schools
operating in the city. They also exclude close to 68% of the cityâ&#x20AC;&#x2122;s elementary level students.
This amounts to missing education information on at least 2, 38,764 of the approximately 3,
33,776 students enrolled in primary and upper primary schools.
We supplemented our detailed survey with interviews with a random sample survey of
361 households. This household survey shows that nearly 70% of those with children in
government schools would prefer to send their children to private unaided schools if they
could afford to do so. More than half the respondents did not think the government schools
provided quality education. In fact, about a fifth seemed to have chosen a government school
only for non-educational benefits such as the free midday meal and uniforms.
Section 19 of the RTE Act, 2009 requires that all unrecognised schools in the country be
closed down within three years of the Act coming into force. For Patna, this would mean
shutting down almost all private unaided schools which will result in a host of problems. If
unrecognised schools were to close down, finding space for two thirds of the cityâ&#x20AC;&#x2122;s children
who attend these schools in government ones that are said to be operating to capacity
serving the other one third is impossible. Instead what is required is not to seek to close
private unaided schools but to come up with a more innovative policy aimed at capitalising
on the existing institutions.
We recommend a new recognition policy that would bring the unrecognised schools out of
the extra-legal sector without having to abide by a host of rules and laws that do not focus on
quality or childrenâ&#x20AC;&#x2122;s educational attainment and which represent needles barriers to entry,
innovation and entrepreneurship.
To encourage focus on quality, and to ensure minimum levels of transparency and fairness in
the market, the government should create a healthy school eco-system. This requires planning
based on authentic data on all types of schools and appreciation for better performing schools.
To achieve the later, we recommend that all schools be rated annually, preferably through
external agencies or self-regulation, against a well-defined, researched and meaningful set of
input and performance indicators.
2
Introduction
Bihar is now among the fastest growing
states in the country with Patna being the
capital where a large number of people
have made their home.2 Patna, a typical
tier II city, is among the oldest cities in the
world. It is also one of the oldest centres
of higher education in India – Patna
University was founded in 1917. However,
this eminence in higher education has not
been extended to its school education
system. In fact, published data have been
consistently projecting a dismal picture
of the city’s school education sector.
According to official statistics Patna has
only 350 schools to cater for its 1.8 million
people.3 There are 3,50,000 school aged
children in Patna.4 Since the enrolment
figures in the 350 government and aided
schools add up to 1,00,000 and the official
count of out of school children is 15,891,
it seems safe to say that there must be
hundreds of unaccounted private unaided
schools providing the remainder with an
education but operating under the radar.5 It
is now well documented that if people can
afford even a hundred rupees per month
for education, they will start to look for a
private school for their child.
This type of behaviour, i.e., parents voting
with their feet away from government
schools, where they perceive the quality of
education is low, has allowed entrepreneurs
to step in to cater for this demand and
become school owners. This has lead to
the creation of a low cost school ecosystem
in which supply meets demand both in
kind and in quantity. Since the flourishing
of such an ecosystem can be construed as
an indictment of the quality of education
offered free in government schools, low cost
schools typically fail to attract sympathetic
reviews from policy makers and experts
who call for their “exposure”.
What is important in this research is that
our findings will have implications for the
rest of India and cities that are comparable
to Patna Urban. The study was therefore
designed to carry out a complete census
and survey of schools operating within the
city, and to capture the various dimensions
of the ecosystem in which these schools
operate.
The Right of Children to Free and
Compulsory Education Act 2009 is,
unfortunately, unrealistic in its approach to
unrecognised schools. Section 19 of the Act
mandates that all unrecognised schools be
shut down within three years of its coming
into force, that is before March 2013. This
provision could only have been made in the
absence of credible large scale data on and
hence a clear appreciation of the extent
of the contribution unrecognised schools,
which form the bulk of low cost schools,
make in meeting the education goals of the
country.
This study fills this gap with empirical
evidence from the entire city rather
than a sample. If the findings show that
unrecognised schools are a main provider
of education, then it is going to be essential
that there are amendments to the Act.
3
Methodology
“The Private School Revolution in Bihar” is
a study by the India Institute, New Delhi,
with the EG West Centre, Newcastle
University, UK. It was conducted with the
authorisation of the Ministry of Human
Resources Development of Bihar.
Initially, it was planned to study only the
private schools serving the 4, 50, 000
people of Patna’s 75 slums. It was originally
assumed, taking information from other
studies in similar cities in India, that there
could be 3-4 low cost private schools for the
5,000-6,000 people in each slum. We also
hypothesised that these schools could be
catering to at least every fifth person in the
slum. That is, 225 to 300 schools in all. But
once in the field, it soon became clear that
this phenomenon was not restricted to the
economically poor. Almost on every street
corner of Patna, one could see not one but
many private schools operating. So the
India Institute extended the study to cover
all of the 72 wards of the city, and included
a household survey and GIS mapping of
the schools. From November 2010 through
March 2011, we enumerated, surveyed
and mapped schools, and interviewed
hundreds of households.
While piloting our tools, we also met with
various education department officials and
activists to know their estimation of the
number of private schools in the city. The
government records showed only a handful
of private schools. The officials, however,
estimated that about twenty percent of the
city’s schools would be private. In absolute
numbers, their estimates amounted to
about 85 schools. On the other hand,
activists we spoke to believed that there
could be 2000 to 2500 private unaided
schools in the city. The huge difference in
the estimations prompted us to include a
census before the survey of the schools.
Thus, we had two sets of independently
collected data, which we could then
compare and cross check for errors.
We used GIS technology to plot the location
of schools. It helped in avoiding inadvertent
duplication of entries in the survey. A more
significant use has been the accurate
identification of school locations for the
purpose of understanding the physical
distribution of various types of schools – by
management type, by terminal grade level
and by cost level. We were able to geo-map
almost all the private schools and a third
of the government schools operating in
the 72 wards of Patna Municipal Area. We
expect this to be of immense help to the
educational planners of the government of
Bihar as well as serve as a model for other
governments and agencies in the country
looking to integrate technology into their
educational planning process.
Each surveyed school was visited
unannounced by a team of two trained
field research associates. While one
administered the interview schedule to
the principal or the manager, the other
made observations on class room activity,
amenities and student behaviour in the
school, which they noted in a separate
form once they were outside the school.
Wherever possible, they also took a tour of
4
the school to verify claims such as presence
of labs, computers, and separate toilets
for boys and girls etc. For authenticity
of information entered in the interview
schedule, the team got the signature
of the interviewee and the seal of the
school. Information from each school was
also telephonically verified before being
entered it into the database.
Geo-mapping and household surveys were
conducted after the census and survey
of schools. The GPS team mapped all the
schools on our list. They also recorded the
coordinates of a third of the government
schools in the city for analysis of the pattern
of private school distribution around
government schools.
The household survey was conducted to
understand factors affecting school choice.
To avoid selection bias arising out of
interviews with parents from any one set
of schools, we interviewed 361 randomly
selected households from 15 wards of
Patna selected through computerised
randomisation. These 361 households had
194 children in government schools and
477 children in private schools.
Constraints
The teams covered the whole city lane by
lane. But in the absence of a city road map,
it is possible that we missed some schools.
Similarly, in the absence of proper ward
maps- the concerned official suggested that
we learn from each ward commissioner
which streets/areas came under her/his
ward- we relied on the schools to decide
which ward their address is included in.
This could be the reason for no schools in
ward 9 in our final analysis.
Another constraint was the non-availability
of urban sample frames. The electoral rolls
we obtained too were incomplete in some
respects. So we adopted a random start
method to choose participants for our
household survey.
Due to monetary constraints, we could
not independently survey the government
schools. We have used government data
(education department data given to DISE)
for our comparisons with government
schools.
5
Types of Schools in Bihar
Unrecognised schools in Bihar
Based on funding and management
type, schools in Bihar are of three types,
government, private aided and private
unaided.
Our research shows that Bihar is one of
the few states that is yet to enact a school
education act post independence. So
private schools are governed mainly by
the provisions of Bihar Non-Government
Secondary School Management and Control
Takeover Act of 1981. The power of the
government to grant recognition to schools
flows from Article 19 of this act. Interestingly,
unlike in most other states, this provision
allows not just trusts and societies, but also
“individual” and “individuals” to establish
a school if they gave an undertaking that
they would not seek financial assistance
from the government. Even though this
provision is applicable only to secondary
schools, it does reflect a more progressive
outlook towards mobilizing every possible
resource to improve access to education
for the children of the state.
Government schools are fully funded
and managed by the government. The
government runs primary schools (grade
1-5), upper primary (grade 1-8/ 6-8) and
secondary schools. Government secondary
schools are also called Rajkiyakrit Schools
and Rajkiya Schools depending upon
whether or not they were taken over by the
government from private owners in 1981.6
Private Aided (PA) schools are schools that
are partially funded by the government but
owned and managed by private bodies.
The government of Bihar funds religious
schools too. Therefore, among the aided
schools are some Madrasas and Sanskrit
Vidyalayas (Hindu religious schools).
Private Unaided (PUA) schools are schools
that do not receive any funding from the
government. They manage their financial
obligations through fee collection, donation
and endowment. PUA schools can be
either recognised (by the government) or
unrecognised. Generally, a student moving
from a private school to a government
school would require a transfer certificate
(TC) from a recognised school. Unrecognised
schools are therefore operating within an
extra legal sector outside of the laws and
rules that appear on paper.
Since the only legislation addressing the
issue of recognition is aimed at secondary
schools, almost all private unaided
primary and upper primary schools are
unrecognised. Based on the findings of our
survey, we believe that where a primary
or upper primary school is recognised, it is
a school with permission to expand up to
secondary level. We found only four such
schools in the city.
Available estimate of unrecognised schools
Bihar’s unrecognised schools have
been greatly underestimated in existing
6
literature. The Common School System
Commission of Bihar estimated the number
of unrecognised secondary schools in the
state at 700.7 The seventh All India School
Education Survey by the NCERT in 2002
estimated 3922 unrecognised schools at
the primary level and 2193 unrecognised
schools at the primary level in the state,
aggregating to 8.81% and 18.09% of the
total schools in the respective categories.
DISE does not provide data on unrecognised
schools. Its data on recognised schools
in Bihar suggests gross underestimation.
In 2008-2009, DISE estimated a total of
93 private schools in Bihar. The 200910 provisional data from DISE estimates
only 14 private schools in the entire state.
We, however, found that 80 new schools
came up in Patna urban alone between
2009 and 2010. These 80 schools cater to
6190 students totally and 3900 students in
grades 1 to 8.
However, the 64th round of national sample
survey (Education in India: Participation
and Expenditure) by the National Sample
Survey Office (NSSO) in 2007-08 pegged
the extent of unrecognised schooling at a
much closer level to reality. Interviewing
households, as opposed to enumerating
schools has given a realistic picture in this
regard. The NSSO calculates that 43.8% of
the primary school children in urban Bihar
go to unrecognised schools. At the upper
primary level, unrecognised schools cater
to 25.5% of the students.
Dominant perception
As with their numbers, the service
rendered by unrecognised schools too
has gone largely unnoticed by experts
and policy makers. The RTE act of 2009
mandates that all unrecognised schools be
closed down by 2013. In the case of Bihar
itself, in our interaction with the education
department officials, we identified a lack
of appreciation for the contribution these
schools were making to educating Patna’s
children and for the parental aspiration of
the economically weaker section that has
propped the space for these schools. The
Bihar Common Schools System Commission
opined that
“Most of these schools have some
structures but no regular class of teaching
takes place on time.”
To some extent this misperception could also
be a result of having to form an inference
without enough evidence to support it. As
per the report, most unrecognised schools
were established in the 80s. However, in
the case of Patna at least, only 14% were
set up between 1981and 1990. About 10%
existed before 1980 and the remaining 76%
came up in the two decades starting 1991
(Figure 1 on page 17).
7
RESULTS
Number of Schools
How many schools of each management
type (government, private aided and
private unaided) are there? We explored
this by sending survey teams into Patna
Urban to find private schools, and by using
government data for government schools.
Altogether, the survey team visited 1,238
private schools, including 14 private aided
and 1,224 private unaided schools. It is
important to note that this is a lower bound
on the number of private unaided schools
in Patna, as we cannot be certain that the
survey team found all schools.
We obtained number of government and
private aided schools from the government
offices. These gave a total of 336
government schools in Patna Urban area,
together with the 14 private aided schools
that were also found by our survey team.
Table 1 shows the total number of schools in
Patna Urban. Private unaided schools make
up the vast majority of schools in Patna –
78%, compared to only 21% of government
schools and 1% of private aided.
Private unaided schools were divided into
three categories, related to their maximum
monthly fees charged:
• low cost: the maximum monthly fee in
the school is less than Rs 300
• affordable: the maximum monthly fee
is between Rs 300 and Rs 499
• higher cost: the maximum monthly
fee is Rs. 500 or over
Our survey team investigated the fees
charged in the schools. From the 1,000
schools answering this question (data
were missing from three schools), 69.1%
of private unaided schools were low cost,
22.3% were affordable, and only 8.6% were
higher cost. That is, the vast majority of
private unaided schools found in the capital
city of Bihar were low cost, charging less
than Rs. 300/- per month (see Table 2).
Table 1 Number of schools, Patna Urban
School type
Number
%
Government
336
21%
Private aided
14
1%
Private unaided
1,224
78%
TOTAL
1,574
100%
Table 2 Number of private unaided schools by affordability
Frequency
Valid
Total
Valid Percent
691
68.90
69.10
Affordable private school
223
22.20
22.30
Higher cost private school
86
8.60
8.60
1,000
99.70
100.00
3
0.30
-
1,003
100.00
-
Total
Missing
Percent
Low cost private school
System
10
Enrolment
What proportion of children is enrolled in
private unaided schools in Patna Urban?
We used government data for government
and private aided schools, and used data
from 1,000 private unaided schools,
extrapolating to the 1,224 private unaided
schools found by the survey teams.8
Table 3 shows our findings for Patna Urban.
Fully 65% of schoolchildren in Patna attend
private unaided schools, with just 34%
attending government schools. In other
words, roughly 2 out of 3 school children
in Patna Urban attend a private unaided
school.
We can break down this data further to look
at the different categories of private unaided
schools (Table 4). Here we see that there are
virtually as many children in low cost private
schools as there are in government schools
– 32% for private unaided low cost and 34%
for government schools. Or to put it another
way, nearly 1 out of 3 children in Patna Urban
attend a low cost private school – with fees
less than Rs. 300 per month.
As per the Annual Work Plan and Budget
document of the SSA, 2009-10 (AWP&B),
there are 3,49,667 children in Patna in
the 6 to 14 age group. Of them, 15,891
are out of school. Our data shows that
total elementary level enrolment in
both government and private schools is
2,68,503. Thus, if we consider AWP&B data
to be accurate, there are 65,273 children,
about 19 per cent of the city’s school age
group population, for whom we do not
have schooling information. It follows then,
that either the estimate of out of school
children is highly deflated or these children
are in the 224 private schools that did not
participate in our survey. If the latter case
is true, then it would mean that actually 68
%, not 65% as our conservative estimation
after extrapolation shows, of all school aged
children in Patna go to a private school.
Table 3 Enrolment by school management type
School type
Enrolment
% of total enrolment
% of total school aged children
Government
91,087
27.29%
26.05%
Private aided
3,925
1.17%
1.12%
173,491
51.98%
49.62%
65,273
19.56%
18.67%
Total enrolled
3,33,776
100.00%
95.46%
Out of school
15,891
-
4.54%
3,49,667
-
100.00%
Private unaided
Private unaided not
surveyed *
TOTAL
* Total school aged children minus total surveyed minus out of school children. All other ratios for
private schools in this report are based only on figures obtained through our survey.
11
Table 4 Enrolment by school management type, including affordability of private unaided schools
School type
% of
private
unaided
Enrolment
% of total
Government
91,087
33.90%
33.90%
Private aided
3,925
1.50%
1.50%
1,73,491
64.60%
Private unaided
% of total
Low cost
85,515
49.30%
31.80%
Affordable
46,348
26.70%
17.30%
Higher cost
41,628
24.00%
15.50%
TOTAL
2,68,503
We can further disaggregate the data in
Table 4 above to show the comparative
enrolments for grades 1-5 and grades
6-8 (Table 5). Here we see that for grades
1 to 5, 63.1% of school children are in
private unaided schools, while 33.0% of
100.00%
the total are in low cost private schools.
For grades 6 to 8, however, the figure now
rises to 68.5% of school children in private
unaided schools, although a slightly lower
proportion (28.8%) of these are in low cost
private schools.
Table 5 Comparative enrolment in government and private schools, by grades
Grades 1-5
School type
Government
Private aided
Private unaided
% of Private
unaided
Enrolment
% of total
% of total
68,713
35.60%
35.60%
2,453
1.30%
1.30%
1,21,701
63.10%
Low cost
63,704
52.30%
33.00%
Affordable
32,964
27.10%
17.10%
Higher cost
25,033
20.60%
13.00%
TOTAL
1,92,867
100.00%
Grades 6-8
School type
% of private
unaided
Enrolment
% of total
Government
22,374
29.60%
29.60%
Private aided
1,472
1.90%
1.90%
Private unaided
51,790
68.50%
Low cost
21,810
42.10%
28.80%
Affordable
13,384
25.80%
17.70%
16,595
32.00%
Higher cost
TOTAL
% of total
75,636
21.90%
100.00%
12
Gender issues
We obtained figures from government on
enrolment of girls and boys in government
schools (figures for private aided were
unavailable), and obtained data on this
question from 1,000 private unaided
schools. The figures show that 53.80% of
students in government schools are girls,
compared to 43.40% of students in private
schools. Disaggregated we see that 45%
of students in the low cost private schools
are girls, with 41% in affordable and 42% in
higher cost private schools. These figures
will be disturbing on one level – they show
that slightly less than half of enrolment in
the private unaided schools is girls, and
suggests that there is room for assistance to
help the private unaided schools cater for
more girls. Looked at another way, however,
it is a further indictment of the perceived
quality of government schools –parents
tend to send their boys to the private
schools because they perceive them to be
better schools than the government’s.9
Table 6 Gender in school management type
Total pupils
Government
Number of
girls
% Girls
Number of
schools
91,087
48,984
53.80%
336
2,29,650
99,636
43.40%
1,000
Low cost
1,16,010
52,231
45.00%
691
Affordable
61,325
25,262
41.20%
223
Higher cost
52,315
22,143
42.30%
86
Private unaided
Teachers and students
We were not able to get the pupil-teacher
ratio for typical teaching classes in any
management type. However, we were able
to obtain the total number of teachers
in the school management types – this
was the only figure the government was
able to give us. This gives us a crude but
nonetheless useful quality indicator. In the
private unaided schools we obtained it by
aggregating the numbers given by private
unaided school managers in 1,000 schools.
Dividing the number of pupils in each
school type by the number of teachers gives
us the figures in Table 7. This shows that
for private unaided this crude measure of
pupil/teacher ratio (PTR) is 22.1, compared
to 42.30 for government schools in the city.
The difference is greater when compared
with state level figures- 52.51 for primary
schools and 61.25 for primary with upper
primary schools.10 In fact, at the state level,
for 13 % of government primary schools
and 14 percent of government upper
primary schools the PTR is above 100.11
Interestingly, the low cost private schools
have the lowest pupil-teacher ratio of all,
at 21.0 pupils per teacher.
13
Table 7 Pupil/teacher measure
No of teachers
Government
Private unaided
Low cost
Number of Pupils
Number of
pupils/ number
of teachers
Number of schools
2,151
91,087
42.30
336
10,379
2,29,650
22.10
1,000
5,519
1,16,010
21.00
691
Affordable
2,860
61,325
21.40
223
Higher cost
2,000
52,315
26.20
86
Attendance & Teaching Activity
In private schools, teacher attendance
seemed to correlate with the cost level.
While on average 90 percent of teachers
in private schools were present on the
day of the survey, between the three cost
categories, teachers of the higher cost
schools tended to be more regular.
Our surveyors also observed 981 private
school class rooms in this study. In 911 of
those class rooms, they found a teacher
present and engaged in a teaching activity.
While in 57 cases they found the teacher
present but not engaged in a teaching
activity, in 13 cases the teachers were
absent.
Among the 973 private school heads
observed, 324 of them were engaged in
teaching at the time of observation while
575 were engaged in administrative work.
74 of them were absent on the day of their
observation.
Table 8 Teacher attendance in private schools
School Type
% of teachers present
Low Cost
Affordable
Higher Cost
All Private Unaided
88.95
91.31
93.87
89.92
Table 9 Teacher activity
Teaching
Not Teaching
Doing Administrative Work
Absent
Total
Teachers
911
57
0
13
981
School Heads
324
NA
575
74
973
Recognition Status
We asked the 1,003 private unaided school
managers about the recognition status
of their school. Two didn’t give us data
on this. Of the 1,001 giving data, only 42
were recognised by the government, while
4 were reported to have a “No Objection
Certificate” (NOC) but were apparently not
otherwise recognised. [A school applying
for affiliation to Central Board of Secondary
Education (CBSE) or Council for Indian
School Certificate Examination (ISCE) has
to get a No Objection Certificate from the
14
state government. This NOC is given only to
recognised schools. However, in the pilot
study, an unrecognised school was found to
have an NOC, so the question was included
to explore whether such cases were
rampant. If a school has no recognition but
has NOC, it suggests that the system has
been manipulated in some way].
Table 10 Recognition status
Frequency
Valid
Percent
Recognised
Unrecognised
Missing
Valid Percent
42
4.20
4.20
955
95.20
95.40
NOC
4
0.40
0.40
Total
1,001
99.80
100.00
2
0.20
-
1,003
100.00
-
0
Total
We can also look at the affordability status
and recognition (here 998 schools gave
us enough information to analyse this).
We see in Table 11 that only 2.3% of the
low cost private schools were recognised,
compared to 17.40% of the higher cost
private schools.
Table 11 Recognition status correlated with affordability
Affordability of the school
Low cost Affordable Higher cost
private
private
private
school
school
school
Recognised
Recognition
status
Unrecognised
NOC
Total
Total
Count
% within Affordability of the school
16
2.30%
9
4.00%
15
17.40%
40
4.0%
Count
% within Affordability of the school
672
97.50%
214
96.00%
68
79.10%
954
95.60%
Count
% within Affordability of the school
1
0.10%
0
0.00%
3
3.50%
4
0.40%
Count
% within Affordability of the school
689
100.00%
223
100.00%
An important observation regarding
recognition status relates to highly inflated
enrolment figures for government schools.
In our survey, 91% of schools up to class
10 and 61% of schools up to class 12 were
unrecognised. Since unrecognised schools
cannot send students to sit for board
examinations, their class 10 and 12 students
86
998
100.00% 100.00%
must also be enrolled in a government
school or a recognised private school or the
National Open School. Considering the cost
involved and the small number of private
recognised schools in the city, we believe
that this data suggests very high levels of
double enrolment.12
15
Fees/affordability
recognition status
and
Fees/
As noted above, we defined the private
unaided schools into three categories:
• low cost means the maximum monthly
fee in the school is less than Rs 300
• affordable where the maximum monthly
fee is between Rs 300 and Rs 499
• higher cost where the maximum monthly
fee is Rs. 500 or over
The following table shows other findings
about the fee range with schools defined in
this way (we had data on 993 unaided and
aided private schools for this information).
The low cost private schools, for instance,
had a minimum monthly fee of Rs. 20,
and a maximum of Rs. 290, with a median
minimum fee of Rs. 100 and a median
maximum of Rs. 150.
The maximum fees of private aided schools
(although we only gained information on
this from 3 schools) put them somewhere
between low cost and affordable private
schools.
Table 12 Fees and affordability
Maximum fee
Minimum fee
Affordability of the school
Standard
Minimum Maximum
Deviation
N
Mean
Low cost private school
684
114
48.63
20
Affordable private school
220
229
75.86
50
Higher cost private school
86
432
371.28
105
Private aided school
Range
Medium
275
255
100
450
400
225
2500
2395
313
3
120
107.59
10
225
215
125
Total
993
167
153.79
10
2500
2490
150
Low cost private school
684
156
63.05
30
290
260
150
Affordable private school
220
351
51.16
275
495
220
350
Higher cost private school
86
731
460.60
500
3000
2500
588
3
180
181.87
15
375
360
150
993
249
223.60
15
3000
2985
200
Median
Private aided school
Total
Table 13 Recognition and fees
Recognition status
N
Mean
Std. Deviation
Minimum
Maximum
Range
Minimum fee
Maximum fee
40
40
280
434
270.5
366.0
50
50
1400
1800
1350
1750
200
350
Unrecognised Minimum fee
Maximum fee
945
945
161
240
143.9
211.3
20
30
2500
3000
2480
2970
150
200
Recognised
NOC
Minimum fee
Maximum fee
4
4
419
600
286.8
255.0
125
250
800
850
675
600
375
650
Total
Minimum fee
Maximum fee
989
989
167
249
154.0
223.9
20
30
2500
3000
2480
2970
150
200
We can also look at fees and recognition
status. Table 13 shows that in general the
recognised schools are more expensive
than the unrecognised ones – with a
median minimum fee of Rs. 200 per month,
compared to Rs. 150 for the recognised.
16
Year of Establishment
recognition status and affordability of the
schools. It turns out that the reported oldest
private school was an unrecognised low
cost school (founded 1937). The median
date for opening of an unrecognised low
cost private schools was 2000, compared
to 1982 for a recognised low cost private
school.
Concerning Year of Establishment of the
schools, Table 14 shows that the private
unaided schools are clearly not â&#x20AC;&#x2DC;fly by
nightsâ&#x20AC;&#x2122;. The mean year of establishment for
the recognised private schools was 1987,
while for the unrecognised schools it was
1997. The table below shows the data by
Table 14 Year of Establishment, recognition and affordability
Recognition
status
Affordability of the school
N
Mean
Std.
Deviation
Minimum
Maximum
Range
Median
Recognised
Low cost private school
Affordable private school
Higher cost private school
Total
16
9
15
40
1983
1986
1992
1987
15.5
16.8
11.4
14.6
1961
1959
1965
1959
2006
2008
2007
2008
45
49
42
49
1982
1986
1994
1991
Unrecognised
Low cost private school
Affordable private school
Higher cost private school
Total
672
214
68
954
1997
1997
1995
1997
10.9
9.8
12.3
10.8
1937
1950
1960
1937
2011
2011
2010
2011
74
61
50
74
2000
2001
1998
2000
NOC
Low cost private school
Higher cost private school
Total
1
3
4
1954
1991
1982
9.0
20.0
1954
1981
1954
1954
1997
1997
0
16
43
1954
1996
1989
Low cost private school
Affordable private school
Higher cost private school
Total
689
223
86
998
1996
1998
1994
1996
11.3
10.4
12.0
11.2
1937
1950
1960
1937
2011
2011
2010
2011
74
61
50
74
1999
2001
1996
2000
Total
Figure 1 Private schools establishment trend
425
335
145
2
8
39
44
5
17
Medium of instruction
We obtained data on the medium of
instruction for 997 of the private unaided
schools. Around half of the low cost private
schools were English medium, while 6.5%
were Hindi medium and 43% a mixture
of English and Hindi medium. The vast
majority of higher cost private schools
were English medium (86.6%) with none
of these schools being Hindi medium only.
We were not able to gain this information
from the government schools, although it
is assumed that the vast majority of these
will be Hindi medium.
Table 15 Medium of instruction and affordability
Affordability of the school
Medium of
instruction
Total
Low cost
private
school
Affordable
private
school
Higher cost
private
school
174
78.00%
74
86.00%
595
59.70%
Total
English
Count
% within Affordability of the
school
347
50.40%
Hindi
Count
% within Affordability of the
school
45
6.50%
4
1.80%
0
0.00%
49
4.90%
English
and Hindi
Count
% within Affordability of the
school
296
43.00%
45
20.20%
12
14.00%
353
35.40%
Count
% within Affordability of the
school
688
100.00%
223
100.00%
86
100.00%
997
100.00%
Average teacher salaries
We investigated teacher salaries in private
aided and unaided schools. We asked school
managers for the average monthly salary
of teachers in their schools. For low cost
private schools the mean of the responses
was Rs. 1,447 per month, with a median of
Rs. 1,250. Affordable private schools had
the same median as private aided schools
(Rs. 2,500 per month), although a lower
mean (Rs. 3,074 compared to Rs. 3,525).
We see that the recognised schools had
in general higher monthly teacher salaries
than the unrecognised.
18
19
Arerage
monthly
teacher
salary
Arerage
monthly
teacher
salary
Arerage
monthly
teacher
salary
Arerage
monthly
teacher
salary
Recognised
Unrecognised
NOC
TOTAL
Recoginition status
15
Higher cost private school
64
Higher cost private school
Total
Private aided
973
7
82
208
Affordabile private school
Higher cost private school
676
4
Low cost private school
3
Total
1
923
Higher cost private school
Low cost private school
Total
1
199
Affordabile private school
Private aided
659
46
Low cost private school
Total
6
9
Private aided
16
Affordabile private school
N
Low cost private school
Affordability of the school
Table 16 Average teacher salaries, recognition and affordability
2250
3525
6669
3074
1447
8758
11094
1750
2093
2000
6122
2952
1442
4842
3779
8117
5772
1647
Mean
3195.0
2774.2
8600.5
1987.0
1140.3
7720.7
7528.2
3006.6
9274.5
1740.4
1136.8
4490.8
2948.3
4998.1
4316.2
1330.2
Std.
Deviation
175
175
750
650
350
1750
6500
1750
350
2000
750
650
350
175
175
3500
2200
500
Minimum
75000
7750
75000
16000
22000
19782
19782
1750
75000
2000
75000
15500
22000
17500
7750
17500
16000
6000
Maximum
74825
7575
74250
15350
21650
18032
13282
0
74650
0
74250
14850
21650
12325
7575
14000
13800
5500
Range
1500
2500
4500
2500
1250
6750
7000
1750
1500
2000
4125
2500
1250
3625
2625
6000
5000
1375
Median
School facilities
Our researchers were asked to make notes
on several school facilities they observed.
They found that 95 % of the private schools
were operating in pucca buildings. Four
were found to be operating from mud huts
while 42 operated from tin/timber/carton
buildings. Six schools were running in open
air.
With regards to a school library (Table
17), 42.70% of the private schools (aided
and unaided) had a library. Only 29.30%
of the low cost private schools had a
library, however, compared to 86.70% of
the higher cost and 85.70% of (admittedly
small number of) private aided schools.
Regarding having one or more computers
for childrenâ&#x20AC;&#x2122;s use and/or a science lab (Table
18), 65.70% of the private schools overall
had these facilities. Here the low cost
private schools were roughly comparable
to the private aided schools (56% compared
to 57% having these facilities), while the
affordable and higher cost private schools
were much better equipped (86% and
95% respectively). However, government
schools in the state compare very poorly on
this parameter with just 0.90% of primary
and 2.50% of upper primary schools having
a computer.13
Regarding drinking water for the children
(Table 19), all but 2 low cost private schools
had drinking water available.
Regarding toilet facilities (Table 20), the
majority of all types of private unaided
schools have separate toilets for boys and
girls â&#x20AC;&#x201C; 71% of low cost, 85% of affordable
and 88% of higher cost private schools. This
is better than the private aided schools,
with only 57% of schools having these
facilities. The difference is starker when
compared with the stateâ&#x20AC;&#x2122;s average, which
is a mere 37.70% of which only 50.53% are
functional.14
Table 17 Library facilities
Affordability of the school
The
school
has a
library
Total
Yes
Count
% within Affordabililty of the school
No
Count
% within Affordabililty of the school
Count
% within Affordabililty of the school
Low cost Affordable Higher cost
private
private
private
school
school
school
200
143
72
29.30%
66.80%
86.70%
Private
aided
Total
6
421
85.70%
42.70%
482
71
11
1
565
70.70%
33.20%
13.30%
14.30%
57.30%
7
986
682
214
83
100.00%
100.00%
100.00%
100.00% 100.00%
20
Table 18 Computer and science lab
Affordability of the school
The school Yes Count
has a
% within Affordabililty of the school
computer/
science lab No Count
% within Affordabililty of the school
Total
Low cost Affordable Higher cost Private
private
private
private
aided
school
school
school
382
183
79
4
56.00%
85.50%
95.20% 57.10%
300
44.00%
31
14.50%
682
Count
100.00%
% within Affordabililty of the school
214
100.00%
4
4.80%
3
42.90%
Total
648
65.70%
338
34.30%
83
7
986
100.00% 100.00% 100.00%
Table 19 Drinking water
Affordability of the school
The school has Yes
drinking water
facilities
Count
% within Affordabililty of the
school
No
Count
% within Affordabililty of the
school
Total
Count
% within Affordabililty of the
school
Low cost Affordable Higher cost
private
private
private
school
school
school
687
223
86
Private
aided
Total
7
1003
100.00% 100.00%
99.80%
99.70%
100.00%
2
0
0
0
2
0.30%
0.00%
0.00%
0.00%
0.20%
689
223
86
7
1005
100.00%
100.00%
100.00% 100.00% 100.00%
Table 20 Separate toilets for boys and girls
Affordability of the school
Low cost
private
school
The
school
has
separate
toilets for
boys and
girls
Total
Yes and
they are
functioning
Count
% within Affordabililty
of the school
Available
but not
functioning
Count
% within Affordabililty
of the school
No not
available
Count
% within Affordabililty
of the school
Could not
observe
Count
% within Affordabililty
of the schoo
Count
% within Affordabililty
of the school
Affordable Higher cost
private
private
school
school
Private
aided
Total
464
182
73
4
723
70.70%
85.40%
88.00%
57.10%
75.40%
2
4
0
0
6
0.30%
1.90%
0.00%
0.00%
0.60%
187
26
10
3
226
28.50%
12.20%
12.00%
42.90%
23.60%
3
1
0
0
4
0.50%
0.50%
0.00%
0.00%
0.40%
656
213
83
7
959
100.00%
100.00%
100.00%
100.00% 100.00%
21
Distribution of
private schools
Distribution of private schools
The distribution of the types of private
unaided schools could be one of the best
indicators of the nature of schooling in
demand in an area. If the government
desires to take into account parental
aspiration and choice in its educational
planning, understanding what kind of
schools are serving what kind of population
in which areas is a must. An accurate
estimate of available supply is also a
prerequisite for efficient use of scarce
public resources. However, there perhaps
is no city in India in which all of its schools
have been “geo-mapped”. In our attempt
to do this for Patna, we have been able
to cover almost all of the private schools
(even the few that did not participate in our
survey) and about one third of government
schools. In all we were able to map 1,293
schools - 1,182 private schools and 111
government schools.
Findings
It is commonly believed that private schools
exist only in pockets in a town or a city, and
that they serve only the rich and powerful.
Specifically about Bihar, while speaking
of various types of schools, the Common
School System Commission of Bihar (2007)
cites note by Jha, MM (2006) to categorise
private schools as “elite schools offering
international certifications”, “Private feecharging schools for upper middle and rich
classes” and “Low fee private schools in
rural areas”.15 However, the sheer number of
such schools that we found in Patna proves
in no uncertain terms that private unaided
schools are abundant and proliferating, and
that they serve all socio-economic sections
of the society. Plotting their location on the
city’s Google map using Global Positioning
System (GPS) coordinates has presented us
with clinching evidence that in a tier II city
like Patna, private schools are ubiquitous.
Another widely held perception is that low
cost private schools are typically in areas
where there are no government schools.
It is often assumed, indeed wrongly, that
economically poor people would prefer
a free service to a paid service. However,
poor people, when it comes to investing in
the future of their children, seem to prefer
what they consider better service, even if
they have to pay for it.
After we plotted the location of the 1,293
schools on the map, we analysed the
distribution of private schools around
government schools. We did this by
creating a buffer area of one km radius
around each of the 111 government
schools we had mapped and counted the
number of private schools in each of those
3.14 square kilometre buffer zones. The
minimum number we found was nine while
the maximum was 93. As the chart below
shows, only three government schools had
less than 10 private schools in their buffer
zones. Similarly, only 3 government schools
had more than 90 private schools in a one
kilometre radius around them. However,
around 17 percent of the government
schools had 20-30 private schools in their
buffer zones and another 17% had 50-60
private schools.
In some places in Patna, two government
schools operate from the same premises.
24
In such cases, we recorded two different
sets of coordinates separated by a few
metres. This and the fact that in some
cases two or more government schools
are situated within a straight line distance
of one kilometre from each other meant
that the buffer zones overlapped quite
frequently. Therefore, often private schools
in one buffer zone were also counted in
other buffer zones. Still, their popularity is
reflected in their total. In all, 1,054 private
schools existed within a kilometre radius of
111 government schools.
We also calculated the subcategories (by
terminal grade level, fee level and legal
status) and of private schools in the buffer
zones, which is given in the figure below
and Table A1 in the annexure.
Figure 2 % of government schools with count of private schools in 1 km radius
25
26
Figure 3 Distribution of private schools (blue) around government schools (red) in Patna Urban
Factors affecting
parentsâ&#x20AC;&#x2122; choice
of school
Factors affecting parentsâ&#x20AC;&#x2122; choice
of school
Primary reasons for choosing a private
school
How parents choose the school for their
children is a topic not fully researched
in India. In his study of unrecognised
schools in Haryana, Yash Aggarwal (2000)
interviewed heads of private schools
to find the reasons for the popularity
of their schools. He found that most
people chose private schools because
the schools taught English as a subject,
added to social status and were nearer to
home.16 In the First Assessment Report
of Delhi Voucher Project (2009) done
by Centre for Media Studies (Delhi) for
Centre for Civil Society (CCS), parents
opined that word of mouth popularity
was the primary reason for choosing a
school followed by quality of teaching
and nearness to home.17
As shown in the Figure 4 below three main
reasons stand out with regards to parents
choosing private unaided schools for their
children - quality, discipline and English
medium.
We have attempted to add to the
understanding by interviewing 361
randomly
selected
households
of
school going children in Patna Urban.
Corroborating the enrolment trend we
found in our schools survey, more than
two-thirds of the children in the sample
were found to be enrolled in private
schools. Since it is most likely that parents
did not have a hierarchical list of reasons
to base their school choice decision on, we
gave them a list of ten reasons for choice
of a government school and eight reasons
for choice of a private school, and asked
them to identify all the reasons that had
mattered to them.
Quality matters more than government
recognition
Of the parents of 477 children in private
schools that participated in the survey,
only around 34 % said that the recognition
status of the school also influenced their
decision. That is, to about two thirds of
the parents who put their child in a private
school, whether the school was recognised
by the government did not matter. In
fact an almost equal number of them â&#x20AC;&#x201C;
31%- said that they knew the school was
unrecognised but went for it because it
offered good quality education.
While what constitutes quality education
is debatable, a vast majority (91%) of
those who considered that private schools
offered better education also considered
that their students were better behaved
(Student Discipline in Figure 4).
English medium is key
It is well known that English medium is
among the most attractive features of a
private school. In our sample, around 85%
of parents with children in private schools
said English medium played an important
role in their choice of school. However
it was not the factor that influenced the
28
that almost one-fifth of the parents whose
children were in unrecognised schools
were confident of getting a transfer
certificate from a recognised school or
a government school as and when they
needed it. Since there are only a handful
of private recognised schools in the city,
what they really were saying was that
a significant proportion of government
school enrolment shown on records are
students who are enrolled in private
unrecognised schools. These students do
not get their education from government
schools but would remain in their rolls and
get their transfer certificates.
most. That position goes to quality of
education. More than 93% of parents said
that they chose a private school because
they found better quality education there.
This shows that private schools compete
with government schools on quality first.
Merely being an English medium school
does not guarantee patronage. This
inference is corroborated by the fact that
35% of private unaided schools teach in
mixed medium (English and Hindi).
The double enrolment option
Of considerable significance is the fact
Figure 4 Reasons for parental choice of private school





Quality of Education
English Medium
Student Discipline
Government Recognised
Unrecognised but good
Primary reasons for choosing a government
school
Cannot afford a private school
Among parents of children in government
schools (194 children from 361 households),





Will get government/recognised school TC
Favourite Child
Because the child is a boy
Also enrolled in a govt. school
Shifted from a govt. school
70% said affordability was an important
factor in their decision making. Had they
been able to afford the fees, they would
have put their child in a private school.
This reason can also be seen in parents’
preference to sending male children to
private schools and female children to
29
government schools. Around 6% of them
acknowledged having considered the gender
while deciding between a government and a
private school for their child. This correlates
with girl children totalling to slightly less
than half the number of enrolments that
we found in private schools as opposed to
their comprising slightly more than 50% of
students in government schools.
words, they were sending their children
to a school for non-educational benefits
only. Interestingly, between free meals,
and free books and clothes (uniform),
the later seems to have an impact on a
larger number of people. 67% of parents
chose a government school for free books
and clothes compared to 39% who were
attracted by the free meal.
Non-educational benefits
For transfer certificate
40% of the parents of children in
government schools said they were drawn
by the mid – day meal scheme. However,
we found that the scheme may not have
succeeded in converting this enthusiasm for
enrolment into appreciation for education.
A significant proportion of parents with
children in government schools, about
19%, said that they chose a government
school because they did not see any
benefit accruing from education. In other
The next most important factor that seems
to have influenced parents who chose a
government school is the need for a transfer
certificate from a government school.18
Around 56% said that they were afraid they
would not be able to get a government
school seat later if their income levels were
to drop down and not permit continuation
of their child’s education in a private
school.
Figure 5 Reasons for parental choice of government school






Cannot afford private school
Free uniform/books
For government school TC
Quality of education
Mid-day meal
Better infrastructure/playground





Shifted from a private school
Student Discipline
Education has no benefit
Because the child is a girl
Also enrolled in a private school
30
Implications of
findings for RTE
Implications of findings for Right
to Education Act (RTE)
Two provisions of the Right to Education Act
have attracted the most attention, of not
just the stake holders but even the foreign
media. One, the 25 % reservation of private
school seats for government sponsored
students from the economically weaker
sections and two, the proposed closure
of all schools that remain unrecognised
three years after the Act came into force.
Our findings suggest that the provision
to close down unrecognised schools, if
implemented, will be counter productive
to the educational interests of the children.
In fact, it will affect the schooling prospects
of lakhs of children in the country besides
adding financial burden to the state as well
as the parents.
In this section, we explore how access,
quality and cost of education will be
affected by these two key provisions of the
RTE Act.
Implications for Sections 19(2) and 19(4)
Sections 19(2) and 19(4) deal with the
mandatory closure of schools that continue
to remain unrecognised.
Section 19(2) states: Where a school
established before the commencement
of this Act does not fulfill the norms and
standards specified in the Schedule, it
shall take steps to fulfil such norms and
standards at its own expenses, within a
period of three years from the date of such
commencement.
Section 19(4) states: With effect from the
date of withdrawal of recognition under
sub-section (3), no school shall continue to
function.
Financial implications for schools and
parents
From our empirical study, it has become
quite clear that in the case of Patna, if the
legal status of the unrecognised schools did
not change by 2013 and the demands of
Section 19 of the RTE were to be followed,
then the closing down of these schools
would imply forcing 60% of the cityâ&#x20AC;&#x2122;s
children out of school.
Obviously this is a cause for great concern.
Even though the RTE Act has provided
a three year window (two of which are
already almost over) for unrecognised
schools to obtain recognition, in most
cases it is highly unlikely to happen. It is
well documented that the primary reason
for these schools to remain unrecognised
is the unrealistic input criteria they have to
meet, a most contentious of which relates
to teacher qualification. We analysed the
feasibility for unrecognised schools to
employ only trained teachers.
If Section 23 of the Act, which makes it
compulsory that a teacher be trained, is
strictly enforced, unrecognised schools
will become unsustainable. Among lowcost schools, on an average, teacher salary
expenses equal 49 % of revenue. To replace
its existing teachers with trained teachers
and pay them salary at par with the salary
earned by trained teachers in government
32
schools, a low cost school will have to
increase its average fees by 560%. This
is assuming they maintain their existing
PTR, which is much lower than what is
mandated by RTE. Even if they manage to
increase their enrolment to the maximum
level allowed by RTE (PTR of 40:1), they will
have to increase their average fees by 294%
to meet the increased salary expenses.
This is assuming that servicing of loans for
capital costs incurred to accommodate the
increased strength will be met by 50% of
the revenue.
In the case of affordable schools, teachers’
salary is 48% of the revenue. If they
were to follow the RTE norms on teacher
qualification and salary, making the same
assumption as above, even at a PTR of 40:1,
they would need to increase their average
fees by 145%. Even higher cost schools in
Patna would need an additional 173% of
revenue if they wanted to maintain their
current PTR.
Table 21 Effect of RTE on fees
School Type
Low Cost
Salary expense as a
% of revenue
Present PTR
Projected % increase in
avg fees at present PTR
Projected % increase in avg
fees at max PTR under
RTE (40:1)
49
21
560
294
Affordable
48
21
286
145
Higher Cost
44
26
173
1
Quality
A recent study by ASER Centre in one ward
of Patna (ward 60) showed that children in
private schools, mostly from unrecognised
schools, achieved better learning levels
in reading, arithmetic and English than
their government school counterparts.
According to the report “Private school
children significantly and substantially
outperform government school children
in each of the tasks at each grade level”.19
Even comparisons with Bihar average
and national average showed that these
children received better quality education
(see Tables 22,23 & 24).20 Within the ward,
in the case of private schools, the lowest
percentage of children in any class able
to meet the compared parameter for
reading levels was 87.50 while the highest
percentage was 95.50. The comparable
figures for government schools were 30.60
and 63.00. In arithmetic too, private school
children performed much better than
government school children. For instance,
only less than 43% of children in class 4
of government schools could perform the
subtraction sums that more than 93% of
their private school counterparts could do.
33
Table 22 Achievement levels of Patna Urban by management type - Reading
% of children in different grades - Ward 60
Patna Urban
Bihar
Average
(Rural)
National
Average
(Rural)
Government
School
Private
School
All
% Std 2 children who can at least
read words
30.60
87.50
68.30
23.10
28.30
% Std 3 children who can at least
read Std 1 level text
42.30
92.40
74.60
16.50
21.50
% Std 4 children who can read Std 2
level text fluently
44.40
92.70
73.90
30.70
34.20
% Std 5 children who can read Std 2
level text fluently
63.00
95.50
79.10
49.50
48.20
Bihar
Average
(Rural)
National
Average
(Rural)
Reading Level
Table 23 Achievement levels of Patna Urban by management type - Maths
% of children in different grades - Ward
60 Patna Urban
Arithmetic Level
Government
School
Private
School
All
% Std 2 children who can at least
recognize numbers till 10
84.70
97.70
93.70
40.50
38.50
% Std 3 level children who can at least
recognize numbers till 100
53.90
97.20
81.70
29.70
35.70
%Std 4 children who can at least do
subtraction
43.10
93.60
73.50
30.60
32.30
% Std 5 children who can do simple
division
33.70
78.70
55.50
36.90
27.60
Table 24 Achievement levels of Patna Urban by management type - English
% of children in different grades - Ward 60 Patna Urban
Government
School
Private School
% Std 2 children who can at least recognize
alphabets
70.20
96.60
87.60
% Std 3 level children who can at least read a
simple words
26.90
91.70
68.90
% Std 4 children who can read a simple sentence
20.80
93.60
64.30
% Std 5 children who can read a simple sentence
37.00
92.10
64.10
English
All
34
Difference in medium of instruction
Nine out of every ten unrecognised schools
teach either in English or in a combination
of English and Hindi. Therefore, a vast
majority of children who might be shifted
to a government school, if unrecognised
schools were closed, would be shifting
from an English medium school to a Hindi
medium school. Most of these children
would also have had pre-schooling. 804
of the 955 unrecognised schools we found
had pre-schooling. Therefore, shifting these
children to government schools will not be
in the interest of their education.
Distance from home
The next practical difficulty in relocating
children from unrecognised schools to
government schools is concerning the
location of the child’s new school. It is
common knowledge that parents choose
a school that is near to their home. That
there are three private schools for each
government school in the city means that
even if the children get relocated to the
nearest government or private recognised
school, of which type there are just a
handful, for most of the children the new
school is bound to be farther from home
than their present school. As a 2009 study
by Professor K Sudhir and Sachin Sancheti in
rural Uttar Pradesh and Bihar showed, this
could have an adverse effect on retention,
especially in the case of girl children:
“School enrolment is highly sensitive to
distance from home; and especially so
for girls. A ½ km of extra travel distance
dramatically reduces private school
enrolment; from 28.4% to 24% for boys
and from 22.5% to 18% for girls in lower
primary schools”.21
Considering safety is a major concern, this
finding is bound to be valid in urban areas
too. Besides this possible discouragement
from continuing education, this could also
mean need for paid transport in some
cases, thus increasing the cost of education
for the parents.
The moral question
Finally there is the question of who decides
which is the right school for a child. Should
the parents be doing it or the government?
If the government decides to shut the
unrecognised schools and shift their
children to government schools, it would
be taking away from parents their basic
right to choose what kind of education
they would like for their children.
Implications for Section 12(1)(C)
Reduction, not increase in access
Section 12(1)(C) of the RTE Act mandates
that every unaided private recognised
school reserve at least 25% of its seats for
government sponsored children from the
economically weaker section (EWS). This is
one way, it is believed, to increase education
access through public private partnership
(PPP). But this motive will be defeated
if the unrecognised schools are closed.
Because, while 25% of class 1 strength
in recognised private unaided schools in
Patna is approximately 590, 25% of class 1
35
strength in private unaided unrecognised
schools is approximately 4740. Closing
down unrecognised schools would mean
denying eight times more children from
the economically weaker section access to
private school education. Incidentally, 25%
of class 1 strength in unrecognised schools
equals 32% of the present class 1 strength
in Patnaâ&#x20AC;&#x2122;s government schools.
Table 25 Grade 1 strength
School Type
Recognised
Unrecognised
No. of schools
Avg grade 1
strength
Est. total seats in grade 1
25% of total seats
in grade 1
51
46.21
2,357
589
955
19.84
18,947
4,736
Financial implication for the state
If we assume that necessary space and
amenities are somehow made, the state
taking over the responsibility of funding
these children will have enormous financial
implication. Our survey shows that fully 83%
of children in private unaided schools are in
unrecognised schools. In absolute numbers,
that amounts to close to 1,50,000 students.
At the rate of Rs 4705 per child per annum
that Bihar spends on educating its children
in government schools, roughly, the
annual recurring expenditure of educating
children from Patnaâ&#x20AC;&#x2122;s unrecognised schools
alone will be more than 70 crore rupees
(700 million INR).22 If we add the required
capital expenditure and extrapolate the
numbers for all of Bihar, the figure will run
into several hundred crores per annum.
To put another way, since enrolment in
unrecognised schools together with a small
percentage of double enrolment amounts
to twice the enrolment in government
schools, the government will have to
increase its budget by approximately 200%
if it has to educate them.
Thus compared to the excitement this
provision of the Act has created among
various stakeholders, its impact in Biharâ&#x20AC;&#x2122;s
capital city will be contrary to expectation,
unless the government adopts innovative
policy measures to implement the RTE.
Conversely, it is certain that a vastly more
number of children are benefitting from
private school education even without the
25% reservation. Of course they are paying
for it currently, while beneficiaries of the
25% reservation would not be. But then,
they are also getting the best they can
afford.
36
Recommendations
Our study has revealed an extraordinary
situation. While official figures show hardly
any private schools, our study has revealed
that fully 68% of students are enrolled in
private schools. And these children are of
course not confined to the elite or middle
classes. 32% of children are enrolled in
low cost private schools, that is, schools
charging less than Rs. 300 per month.
It is not our place to make detailed
recommendations – we are hopeful that
the findings will themselves prompt debate
about possible ways forward. However, one
thing is very clear: making education policy
in Bihar while ignoring the choices and
preferences of two-thirds of parents is very
odd and unsustainable. The major source
of our concern is what will happen as the
Right To Education Act gets implemented.
Here we offer a few tentative suggestions
for the implementation of RTE:
1. Given the sheer number of children who
go to unrecognised schools, shutting
them down as mandated by the RTE is
not viable for the state. Therefore, we
recommend that the government bring
these schools into the legal ambit by
working energetically with private school
proprietors, organisations representing
private schools, including low cost
private schools, and other interested
bodies, to devise a positive way to
recognise private schools. We are aware
that the Government of Gujarat has
devised a mechanism whereby private
schools are rated based on learning
achievements and some input criteria.
We suggest that the Government of
Bihar could be similarly imaginative in
coming up with a recognition process
that accepted the strengths of its
private school sector, including its low
cost private schools.
2. This immediate policy could then be
extended to bring in further aspects of
quality control for school improvement.
We are aware that Gray Matters
Capital in Hyderabad have developed
a particularly interesting ratings system
for private schools, especially low cost
private schools, which examines schools
on student performance, teacher
attendance and a small range of essential
safety and comfort features. Again, the
Government of Bihar in conjunction
with private school interests could lead
the way in extending or devising similar
imaginative ways of bringing private
schools under the state’s quality ambit.
3. Above all, the findings of our study
suggest that no-one in the Bihar
government should feel embarrassed
or defensive about the huge presence
of private schools, including low cost
private schools in their state. Instead, it
should be cause for celebration that the
interests of educational entrepreneurs
and parents, including poor parents, have
become so aligned with the interests of
the state in achieving ‘Education for All’.
Private schools, especially including low
cost private schools, can be celebrated
as worthy partners in the quest to
achieve the Millennium Development
Goals by 2015.
37
Technical notes
survey team conducted their investigations
in 1,010 private schools, featuring 7 private
aided schools and 1,003 private unaided
schools. The data on enrolment for the
private aided schools, however, came from
the government.
Of the private schools, 7 of the private
aided and 221 of the private unaided
refused to participate in answering any
questions about the school. Hence the
Table 26 Private schools in survey
School type
Private aided
Private unaided
Number located
Number refused
survey
Number in survey
% surveyed of total
located
14
7
7
50%
1,224
221
1,003
82%
The figures in tables 3 â&#x20AC;&#x201C; 6 on enrolment
were obtained in the following way: First,
we obtained figures from government with
regard to government and private aided
enrolment. These figures have not been
adjusted, although they are likely to be
inflated, given the propensity for double
enrolment in private and government
schools. In our household survey, more
than 5% of respondents with children in
private schools acknowledged enrolment
in a government school too. That translates
into 12% of enrolment in government
schools.
For the private unaided schools, we used
data collected from the 1000 private
unaided schools that gave their affordability
status (out of the 1,003 private unaided
schools that were surveyed). In these
private unaided schools, we excluded all
children in nursery and grades 9-12, to make
our findings compatible with the figures
for government and private aided schools,
which only feature children in grades 1-8.
Where necessary, we imputed values for
missing data using means for the particular
school affordability type. (For instance, of
the 1,000 schools, data were missing for
90 schools concerning number of children
at the different age levels (nursery, class
1-5, class 6-8, class 9-10 and classes 1112). 76 missing were low cost, 10 were
affordable, and 4 were higher cost. We
imputed means for these missing values
for children in nursery for each type of
school in affordability category â&#x20AC;&#x201C; that is, we
separately imputed the means for low cost,
affordable and higher cost private schools).
Thus we obtained detailed information on
number of children in schools for 1,000
private unaided schools, as shown in Table
27.
Next, we made the assumption that the
224 private unaided schools that refused
to give data had proportionally the same
characteristics as those that did give data.
Hence we arrive at the estimations in Table
7. Of the 2,81,092 children in the private
unaided schools, we eliminated those in
nursery, classes 9-10 and 11-12, so that we
could match with the government figures
for children in classes 1-8
38
Table 27 Enrolment for private unaided schools, n=1,000
Fee type
Affordable
Higher cost
Nursery
Enrolment
41,599
19,050
10,610
71,259
Class 1-5
52,046
26,931
20,452
99,429
Class 6-8
17,819
10,935
13,558
42,312
Class 9-10
4,303
3,841
6,139
14,283
243
568
1,556
2,367
1,16,010
61,325
52,315
2,29,650
691
223
86
1,000
% Nursery
35.90%
31.10%
20.30%
31.00%
% Class 1-5
44.90%
43.90%
39.10%
43.30%
% Class 6-8
15.40%
17.80%
25.90%
18.40%
% Class 9-10
3.70%
6.30%
11.70%
6.20%
Class 11-12
TOTALS
Number of schools
% Class 11-12
Low fee
TOTALS
0.20%
0.90%
3.00%
1.00%
100.00%
100.00%
100.00%
100.00%
Table 28 Enrolment for private unaided schools, extrapolated to 1,224 schools
Fee type
Enrolment
Nursery
Low fee
50,917
Affordable
Higher cost
TOTALS
23,317
12,987
87,221
Class 1-5
63,704
32,964
25,033
1,21,701
Class 6-8
21,810
13,384
16,595
51,790
Class 9-10
5,267
4,701
7,514
17,482
Class 11-12
TOTALS
Number of schools
297
695
1,905
2,897
1,41,996
75,062
64,034
2,81,092
846
273
105
1,224
39
End Notes
1. Since Patna City is the name of a part of the city Patna, we have used Patna Urban to
mean the Patna Municipal Area. This also differentiates the city from the district Patna.
2. Central Statistical Organisation estimates that Bihar is the second fastest growing state
at 11.4% per annum.
3. In this report, private schools aided by the government are counted with government
schools.
4. See Khan 2009, p.29.
5. Khan2009, p.6.
6. The government took control of private secondary schools by enacting the Bihar NonGovernment Secondary School Management and Control Takeover Act of 1981.
7. Report of the Common School System Commission of Bihar. 2007. P.57
8. See Technical Notes on page 38 for further details of how this was done.
9. About 6% of parents of private school children said their school choice decision was
influenced by the gender of their child. See Figure 4 on page 29.
10. See DISE, 2011, p.106.
11. See Khan 2009, pp. 8-9.
12. Simultaneous enrolment in a private and a government school. While government schools
benefit from showing higher strength in their rolls, students benefit from certification
from a recognised school. In essence, double enrolment is double expenditure- by the
parents and by the public exchequer- for one service.
13. DISE. 2009-10 provisional.
14. DISE. 2009-10 provisional.
15. Report of the Common School System Commission of Bihar. 2007. P.36.
16. See Aggarwal 2000, p.65.
17. See CMS Social, 2009, p.17.
40
18. Transfer certificate is the migration certificate. Since all government schools are
recognised by default, a transfer certificate from one of them will allow easy migration
to another recognised school. It is especially useful when the student is approaching
class 10 as that is the time to shift to a recognised school so as to appear for the board
examination.
19. ASER Centre, 2011.
20. The data used is from ASER 2011 and ASER Centre study of ward 60 of Patna. ASER only
surveys schools and students in rural India. National and state averages for English were
not available.
21. http://nexus.som.yale.edu/K,Sudhir & Sancheti, Sachin. 2011. Should the Indian
government subsidize private schools?. [ONLINE] Available at: http://nexus.som.yale.
edu/testcici/content/should-indian-government-subsidize-private-schools. [Accessed
01 February 12].
22. Accountability Initiative, 2012. PAISA District Studies (Rural): 2011 Provisional.New Delhi:
Centre for Policy Research. P.4.
41
References
1. Aggarwal, Yash, 2000. Primary Education in Unrecognised Schools in Haryana: a study of
DPEP districts . 1st ed. New Delhi: Educational Consultants India Limited.
2. ASER Centre, Nov 2011. Translating Policy into Practice: Right to Education. New Delhi.
3. CMS Social, 2009. Delhi Voucher Project First Assessment Report. 1st ed. New Delhi:
Centre for Civil Society.
4. DISE, 2011. Elementary Education in India: Progress towards UEE- Analytical Tables
2009-10. New Delhi: NUEPA.
5. Khan, Altab, 2009. Status of Elementary Education in the million plus cities. New Delhi:
Sarva Shiksha Abhiyan, pp 1-29
6. Kingdon, Geeta, (2005). Private and public schooling: The Indian Experience. In
Mobilising the Private Sector for Public Education. Kennedy School of Government,
Harvard University, Oct 5-6, 2005.
7. Mehta, Arun C, 2005. Elementary Education in Unrecognised Schools in India: s study
of Punjab based on DISE 2005 data. 1st ed. New Delhi: National Institute of Educational
Planning and Administration (NIEPA).
8. Mehta, Arun C, 2011. Elementary Education in India: progress towards UEE - DISE Flash
Statistics 2009-10. 1st ed. New Delhi: National University of Educational Planning and
Administration.
9. Tooley, James, Dixon, Pauline, Merrifield, John, Yong, Bao, 2011, School Choice and
Academic Performance: Some evidence from developing countries, Journal of School
Choice, 5.1, 1-39
10. Tooley, James, Dixon, Pauline, Shamsan, Yarim, and Schagen, Ian 2010 The relative quality
and cost-effectiveness of private and public schools for low-income families: a case study
in a developing country, School Effectiveness and School Improvement, 21(2), 117-144.
11. Tooley, Dixon & Gomathi, James, Pauline & S.V, 2007. Private schools and the millennium
development goal of universal primary education: a census and comparative survey in
Hyderabad, India. Oxford Review of Education, 33:5, 539 - 560.
12. Tooley, J., and Dixon, P. 2007. Private schooling for low-income families: A census and
comparative survey in East Delhi, India, International Journal of Educational Development,
volume 27, no. 2, pp. 205-219.
13. Tooley, James, 2009. The Beautiful Tree: A personal journey into how the worldâ&#x20AC;&#x2122;s poorest
people are educating themselves. Penguin Books, New Delhi.
42
44
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Government Primary School Beur Jail Road Beur Anisabad Patna
Government Middle School Harni Chak Anisabad Patna (block
Phulwari Sharif)
Government Primary School Harni Chak Anisabad Patna (block
Phulwari Sharif)
Government Primary School Balmi Chak Anisabad Patna
Government Primary School Chitkohra Nahar par Near ambedkar chowk Patna
Government Adarsh Balak/Kanya Middle School New Yarpur Gardanibagh
Road No.1 Patna
Government Mahesh High/Middle School Phulwari Sharif Anisabad Patna
Sri Daroga Prasad Ray Ucha Vidyalaya Gardanibagh Chitkohra Market
Patna (near Manohar Mandir)
Government Shramik Middle School Yarpur Kahagol Road Patna
Sanjay Gandhi Mahila Maha Vidyalaya Yarpur Kahagol Road
Patna
Government Primary School Block-Gardanibagh Dom Khana Yarpur
Khagol Road Patna
Ram Chandra Singh Sanskrit Primary/High School Old Jakkanpur
Patna
Dayanand Vidyalaya (boys) Khagol Road Mithapur Patna
Dayanand Kanya Vidyalaya Kanulal Road Mithapur Patna
3
2
4
4
4
4
0
0
4
0
0
0
0
0
RLUP
13
9
17
12
13
13
4
3
11
8
9
8
8
3
ULP
15
13
30
15
14
14
16
9
19
22
17
16
21
4
ULUP
0
0
0
0
0
0
0
0
0
0
0
0
0
0
RAUP
0
0
1
1
1
1
0
4
1
1
4
3
2
0
UAP
4
3
7
5
5
5
3
4
5
6
6
6
6
2
1
1
1
1
1
1
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
UAUP RHUP UHP
1
1
4
1
1
1
1
3
1
3
4
5
5
2
UHUP
12
10
17
16
16
14
10
4
10
11
7
6
8
3
NC
49
39
81
55
55
53
34
27
51
51
47
44
50
14
Total
RLP - Recognised Low Cost Primary; RLUP - Recognised Low Cost Upper Primary; ULP - Unrecognised Low Cost Primary; ULUP - Unrecognsied Low Cost Upper Primary; RAUP - Recognised
Affordable Upper Primary; UAP - Urecognised Affordable Primary; UAUP - Unrecognised Affordable Upper Primary; RHUP - Recognised Higher Cost Upper Primary; UHP - Unrecognised
Higher Cost Primary; UHUP - Unrecognised Higher Cost Upper Primary; NC - Non categorised
RLP
Name of Government School
Table A1 Private schools by type in 1km radius of government schools
Annexure
45
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Government Urdu Primary School Choti Bazar Mogalpura Patna
City
Government Middle School Shekha Ka Roza Mogalpura Patna
City
Government Kanya Middle School Upadhyay Lane Lohanipur
Kadamkuan
Government Middle School Upadhyay Lane Lohanipur Kadamkuan
Lokeshwari Mahila Uccha Vidyalaya Upadhyay Lane Lohanipur
Kadamkuan
Government Samadar High School Lalgi tola Kadamkuan Patna
Student Scientific School Lalgi tola Kadamkuan Patna
Government Samadar Middle School Lalgi tola Kadamkuan
Patna
Government Kanya Vidyalaya Lalgi tola Kadamkuan Patna
Government Blind School Kadamkuan Budh Murti Patna
Student Scientific School Salimpur Ahra DN Lane Patna
Government Girls Middle School Salimpur Ahra DN Lane Patna
Government Primary School Salimpur Ahra Daldali Road Patna
Government Girls High School Dakbangal Chauraha Patna
Bankipur Girls High School Opp Gol Ghar Patna
Gol Ghar Government School Gol Ghar Campus Patna
Urdu Primary School Kath Pul Mandiri Nala Patna
Dwarka High School North Mandiri Patna
1
0
0
0
0
1
1
1
1
1
1
1
1
1
1
1
1
2
RLUP
6
7
5
5
3
11
11
11
9
6
6
6
6
5
6
6
16
18
ULP
13
13
8
8
9
20
19
19
24
24
24
24
24
24
24
24
37
36
ULUP
2
2
1
1
1
0
0
0
0
0
0
0
0
0
0
0
0
0
RAUP
1
1
0
0
0
1
1
1
4
3
2
2
2
5
4
4
1
1
UAP
6
6
1
1
2
10
10
10
10
10
10
9
9
13
13
13
9
10
2
2
1
0
0
1
1
1
1
1
1
1
1
1
1
1
1
1
2
3
0
0
0
1
1
1
1
1
1
1
1
1
1
1
0
0
UAUP RHUP UHP
5
5
3
3
1
0
0
0
0
0
0
0
0
2
2
1
3
3
UHUP
9
13
9
8
10
25
24
24
31
31
28
28
28
32
32
32
23
22
NC
47
52
28
26
26
70
68
68
81
77
73
72
72
84
84
83
91
93
Total
RLP - Recognised Low Cost Primary; RLUP - Recognised Low Cost Upper Primary; ULP - Unrecognised Low Cost Primary; ULUP - Unrecognsied Low Cost Upper Primary; RAUP - Recognised
Affordable Upper Primary; UAP - Urecognised Affordable Primary; UAUP - Unrecognised Affordable Upper Primary; RHUP - Recognised Higher Cost Upper Primary; UHP - Unrecognised
Higher Cost Primary; UHUP - Unrecognised Higher Cost Upper Primary; NC - Non categorised
RLP
Name of Government School
46
0
0
0
0
0
0
0
1
1
1
1
1
0
0
0
0
0
0
0
0
Government Middle School Shanti Niketan Rajendra Nagar Road
No. 13 Patna
Government High School Shanti Niketan Rajendra Nagar Road
No. 13 Patna
Government Primary School Beside Stadium Rajendra Nagar Patna`
Government Middle School Dargah Katra Mandai Patna
Government Primary School Mahendru Mahendru Patna
Government Mahadalit School Ambedkar Colony Sandalpur Patna
Government Primary School Ambedkar Colony Circle Mahendru
Patna
Government Middle School Chaudhri Tola Mahendru Patna
Government Hindu Girls School Saidpur Nahar Patna
Government Primary School Nand Nagar Patna
Government Middle School Shanti Niketan Saidpur Road No. 2
Patna
Government Primary School Saidpur Road No. 2 Patna
B.N Collegiate School Ashok Raj Path Convent Lane Patna
Government Primary School Anta Ghat Patna
Government Middle School Anta Ghat Patna
Muradpur Government Middle School Bihari Sao Lane Muradpur 0
Patna
0
Rabindra Balika Vidyalaya Rajendra Nagar Road No.2 Patna
Patna Muslim High School B.M Das Road Patna
P.N Anglo Sanskrit School Naya Tola patna
8
7
12
7
7
8
8
8
8
8
6
9
8
7
7
2
2
2
9
11
ULP
16
15
13
10
11
12
15
16
20
19
22
23
23
21
21
10
10
10
20
21
ULUP
1
1
1
0
0
0
1
1
1
1
0
0
0
0
0
0
0
0
0
0
RAUP
1
0
2
1
1
1
1
1
0
0
0
0
0
0
0
3
3
3
3
4
UAP
4
2
8
5
5
6
4
4
4
4
5
8
7
5
5
6
6
6
6
9
0
0
0
0
0
0
0
0
0
0
0
1
1
0
0
0
0
0
1
1
0
0
0
0
0
0
0
0
0
0
1
1
1
1
1
0
0
0
1
1
UAUP RHUP UHP
2
1
1
1
1
1
2
2
1
1
0
0
0
0
0
2
3
4
2
1
UHUP
13
12
16
7
7
7
26
26
23
22
18
22
22
17
17
14
15
15
29
34
NC
45
38
53
31
32
35
57
58
57
55
54
66
64
53
53
37
39
40
72
83
Total
RLP - Recognised Low Cost Primary; RLUP - Recognised Low Cost Upper Primary; ULP - Unrecognised Low Cost Primary; ULUP - Unrecognsied Low Cost Upper Primary; RAUP - Recognised
Affordable Upper Primary; UAP - Urecognised Affordable Primary; UAUP - Unrecognised Affordable Upper Primary; RHUP - Recognised Higher Cost Upper Primary; UHP - Unrecognised
Higher Cost Primary; UHUP - Unrecognised Higher Cost Upper Primary; NC - Non categorised
0
0
0
0
0
0
0
1
1
1
1
1
0
0
0
1
1
0
Ganesh Dutt Patliputra School Jagat Narain Road Kadamkua
RLUP
RLP
Name of Government School
47
0
0
0
0
0
0
0
1
1
1
1
1
0
0
0
0
0
0
0
Arya Kanya Vidyalaya Naya Tola Patna
Kedarnath Government Primary School Alamganj Patna
Patna Muslim Higher Secondary School Opposite Patna University
Ashok Rajpath Patna
Abmedkar Bhawan Government Primary School Nala Road
Samudaik Bhawan Patna (near Ambedkar Colony slum)
Adhor Prakash Shishu Sadan Madhya Vidyalaya Khazanchi Road
Patna
Adhor Prakash Balika Uccha Vidyalaya Khazanchi Road Patna
Government Madarsa Islamiya Bhikna Pahari Bari Path Patna
Fateh Narayan Singh Academy School Gur Ki Mandi Shershah
Road Patna
Government Middle School Arafabad Colony Shershah Road
Patna
Dharmesh Primary School Shershah Road Patna
Government Middle School Shershah Road Patna
Government Urdu Middle School Sakri Gali Shershah Road Patna
Patna Collegiate School Baripath Road Collegiate Street
Government Middle School Kurji Patna
Government Middle School Digha Ghat Patna
Government Girls Middle School Digha Ghat Patna
Government Urdu Middle School Digha Patna
Government Senior Secondary School Kurji Balupur Patna
Government Girls High School Makdumpur Digha Patna
0
0
0
0
0
0
0
2
2
2
2
2
0
0
0
0
0
1
0
RLUP
9
6
10
7
8
2
13
8
11
11
11
10
7
10
10
11
8
8
11
ULP
8
6
6
6
6
5
19
21
21
21
21
21
17
16
16
23
16
17
16
ULUP
1
1
1
0
0
1
1
0
0
0
0
0
1
1
1
1
1
0
1
RAUP
3
3
3
1
1
2
3
0
0
0
0
0
0
1
1
3
0
0
1
UAP
4
4
3
3
3
1
10
6
9
9
8
8
3
6
6
9
3
7
8
0
0
0
0
0
0
1
1
1
1
2
2
0
0
0
1
0
2
0
0
0
0
0
0
0
1
0
0
0
0
0
0
0
0
0
0
0
0
UAUP RHUP UHP
1
1
1
1
1
0
1
0
1
1
1
1
1
1
1
2
0
0
1
UHUP
4
7
3
3
3
5
24
22
22
22
22
20
13
12
12
30
13
15
15
NC
30
28
27
21
22
16
73
61
68
68
68
65
42
47
47
80
41
50
53
Total
RLP - Recognised Low Cost Primary; RLUP - Recognised Low Cost Upper Primary; ULP - Unrecognised Low Cost Primary; ULUP - Unrecognsied Low Cost Upper Primary; RAUP - Recognised
Affordable Upper Primary; UAP - Urecognised Affordable Primary; UAUP - Unrecognised Affordable Upper Primary; RHUP - Recognised Higher Cost Upper Primary; UHP - Unrecognised
Higher Cost Primary; UHUP - Unrecognised Higher Cost Upper Primary; NC - Non categorised
RLP
Name of Government School
48
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Kendriya Vidyalaya Shekpura More Airport Road Patna
Government Middle School Salempur Dongra Near V.B College
Patna
Government Primary School Mahuabagh Rupaspur Patna
Government Girls High School Mahuabagh Rupaspur Patna
Government Primary School Garbu Chak Jagdeo Path Patna
Ambedkar Primary School Rupaspur Garbu Chak Patna
Government Primary School Rukanpura Patna (North Of Bailey
Road)
Government Primary School Musahar Toli RukanpuraBailey Road
Patna
K.B Sahay High School Sherulahpur Shastri Nagar Patna
Rajkiya Balak evam Balika Vidyalaya Shastri Nagar Patna
Government Primary School Shekpura Shastri Nagar Patna (near
Community Hall)
Government Middle School Shekpura Bailey Road Patna
Government Primary School Samanpura Raza Bazaar Patna
Government Girls Senior Secondary School Shekpura Shastri
Nagar Patna
Government Primary Urdu School Mogalpure Patna-8
Government Middle Urdu School Sadar Gali Patna City
Government Middle School Khajkelan Patna City
Government Middle School Maheshpur Mehndi
Government Middle School Chaughra Patna City
Government Middle School Kalisthan Mangal Talab
2
1
1
0
1
2
0
0
0
0
0
0
0
0
0
0
0
0
0
0
RLUP
17
13
16
13
15
18
0
1
0
1
1
0
4
4
3
2
1
1
0
0
ULP
35
34
28
23
35
36
4
7
5
7
6
6
13
11
3
15
5
5
8
5
ULUP
0
0
0
0
0
0
3
0
1
3
3
1
0
0
0
0
0
0
0
1
RAUP
2
0
1
1
2
1
0
1
0
1
1
0
1
1
1
1
0
0
0
0
UAP
6
6
5
9
8
10
5
1
4
5
7
5
2
2
1
2
1
1
1
4
2
0
0
1
2
1
1
1
0
1
1
1
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
2
1
2
0
0
0
0
0
0
0
0
0
1
UAUP RHUP UHP
3
2
3
2
2
3
2
3
2
2
1
2
3
3
2
2
1
1
2
2
UHUP
21
14
18
16
22
22
5
18
8
5
4
4
4
3
0
5
1
1
10
8
NC
88
70
72
65
87
93
20
34
21
27
24
19
27
24
10
27
9
9
21
21
Total
RLP - Recognised Low Cost Primary; RLUP - Recognised Low Cost Upper Primary; ULP - Unrecognised Low Cost Primary; ULUP - Unrecognsied Low Cost Upper Primary; RAUP - Recognised
Affordable Upper Primary; UAP - Urecognised Affordable Primary; UAUP - Unrecognised Affordable Upper Primary; RHUP - Recognised Higher Cost Upper Primary; UHP - Unrecognised
Higher Cost Primary; UHUP - Unrecognised Higher Cost Upper Primary; NC - Non categorised
RLP
Name of Government School
49
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
Jalan High School Hajiganj Near Lucky Biscuit P-8
Gandhi Arya Kanya Uccha Vidyalaya Mansoor Ganj
George Madhya Vidyalaya Bakshi Maidan Patna City
Narayani Kanya Vidyalaya Choti Pattan Devi Lane
Government Urdu Middle School Guzri Bazar Patna City
Anusoochit Evam Pichri Jati Madhya Vidyalaya Nakash Devi
Sthan Patna City
Shri Kanhaiyalal Madhya Vidyalaya Chutkiya Bazaar Patna City
Government Middle School Sharif Ganj Patna City
Ram Narain Madhya Vidyalaya Rakabgany North West Ganga
River Mandir
Government Middle School Nurruddin Ganj Patna City
Baijnath Primary School Malsalami Patna Ciy
Lakshmi Kanya Path Sala Nand Gola Devi Sthan Patna Ghat
Sri Raghunath Hindu Uccha Vidyalaya Begampur Patna City
Government Middle School Begampur Patna City
Government Middle School Sati Chauraha Begampur Patna City
Government Middle School Karmalichak Patna City 8
Naveen Kanya Bharat mata Prathmik Vidyalaya Nurrudingani
Patna City
Government Middle School Rajapur Mainpura
Government Primary School Nehru Nagar Mainpura
Government Middle School Nehru Nagar Mainpura Patna
1
1
1
0
0
1
1
1
0
0
0
0
0
0
1
1
1
1
0
0
RLUP
1
1
2
8
3
8
16
16
11
13
8
6
9
9
13
17
13
16
11
14
ULP
8
9
12
23
8
11
26
26
24
29
24
4
14
27
32
32
28
33
30
32
ULUP
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
RAUP
1
3
2
0
0
1
1
1
0
0
0
0
0
0
0
2
2
2
2
2
UAP
3
6
8
2
0
0
3
3
3
3
2
0
1
2
3
9
4
3
3
3
1
1
2
0
0
1
1
1
0
0
0
0
0
0
1
0
2
1
1
1
0
2
2
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
0
UAUP RHUP UHP
0
2
5
0
0
1
3
3
1
2
0
0
0
0
3
3
3
3
3
3
UHUP
10
11
6
16
1
3
8
8
17
22
16
4
7
16
19
21
18
23
21
23
NC
25
36
40
49
12
26
59
59
56
69
50
14
31
54
72
85
71
82
71
78
Total
RLP - Recognised Low Cost Primary; RLUP - Recognised Low Cost Upper Primary; ULP - Unrecognised Low Cost Primary; ULUP - Unrecognsied Low Cost Upper Primary; RAUP - Recognised
Affordable Upper Primary; UAP - Urecognised Affordable Primary; UAUP - Unrecognised Affordable Upper Primary; RHUP - Recognised Higher Cost Upper Primary; UHP - Unrecognised
Higher Cost Primary; UHUP - Unrecognised Higher Cost Upper Primary; NC - Non categorised
RLP
Name of Government School
50
Orange dot-Low Cost Recognised Primary; Black dot in orange circle-Low Cost Unrecognised Primary; Orange triangle-Low Cost Recognised Upper Primary; Orange triangle in circleLow Cost Unrecognised Upper Primary; Blue dot-Affordable Recognised Primary; Black dot in blue circle-Affordable Unrecognised Primary; Blue triangle-Affordable Recognised
Upper Primary; Blue triangle in circle-Affordable Unrecognised Upper Primary; Black dot in green circle-Higher Cost Unrecognised Primary; Green triangle-Higher Cost Recognised
Upper Primary; Green triangle in circle-Higher Cost Unrecognised Upper Primary; Red dot-Government Primary; Red triangle-Government Upper Primary; Red Balloon-Government
School uncategorised; Blue Balloon-Private School uncategorised
Figure A1 Distribution of schools by type - GPS map of Central Patna
51
Orange dot-Low Cost Recognised Primary; Black dot in orange circle-Low Cost Unrecognised Primary; Orange triangle-Low Cost Recognised Upper Primary; Orange triangle in circleLow Cost Unrecognised Upper Primary; Blue dot-Affordable Recognised Primary; Black dot in blue circle-Affordable Unrecognised Primary; Blue triangle-Affordable Recognised
Upper Primary; Blue triangle in circle-Affordable Unrecognised Upper Primary; Black dot in green circle-Higher Cost Unrecognised Primary; Green triangle-Higher Cost Recognised
Upper Primary; Green triangle in circle-Higher Cost Unrecognised Upper Primary; Red dot-Government Primary; Red triangle-Government Upper Primary; Red Balloon-Government
School uncategorised; Blue Balloon-Private School uncategorised
Figure A2 Distribution of schools by type - GPS map of North West Patna
52
Orange dot-Low Cost Recognised Primary; Black dot in orange circle-Low Cost Unrecognised Primary; Orange triangle-Low Cost Recognised Upper Primary; Orange triangle in circleLow Cost Unrecognised Upper Primary; Blue dot-Affordable Recognised Primary; Black dot in blue circle-Affordable Unrecognised Primary; Blue triangle-Affordable Recognised
Upper Primary; Blue triangle in circle-Affordable Unrecognised Upper Primary; Black dot in green circle-Higher Cost Unrecognised Primary; Green triangle-Higher Cost Recognised
Upper Primary; Green triangle in circle-Higher Cost Unrecognised Upper Primary; Red dot-Government Primary; Red triangle-Government Upper Primary; Red Balloon-Government
School uncategorised; Blue Balloon-Private School uncategorised
Figure A3 Distribution of schools by type - GPS map of Patna City
53
Orange dot-Low Cost Recognised Primary; Black dot in orange circle-Low Cost Unrecognised Primary; Orange triangle-Low Cost Recognised Upper Primary; Orange triangle in circleLow Cost Unrecognised Upper Primary; Blue dot-Affordable Recognised Primary; Black dot in blue circle-Affordable Unrecognised Primary; Blue triangle-Affordable Recognised
Upper Primary; Blue triangle in circle-Affordable Unrecognised Upper Primary; Black dot in green circle-Higher Cost Unrecognised Primary; Green triangle-Higher Cost Recognised
Upper Primary; Green triangle in circle-Higher Cost Unrecognised Upper Primary; Red dot-Government Primary; Red triangle-Government Upper Primary; Red Balloon-Government
School uncategorised; Blue Balloon-Private School uncategorised
Figure A4 Distribution of schools by type - GPS map of South West Patna
Relevant Sections of the Rte Act
12. (1) For the purposes of this Act, a
school,â&#x20AC;&#x201D;
(c) specified in sub-clauses (iii) and (iv)
of clause (n) of section 2 shall admit in
class I, to the extent of at least twentyfive per cent. of the strength of that class,
children belonging to weaker section and
disadvantaged group in the neighbourhood
and provide free and compulsory
elementary education till its completion:
Provided further that where a school
specified in clause (n) of section 2 imparts
pre-school education, the provisions of
clauses (a) to (c) shall apply for admission
to such pre-school education.
19. (1) No school shall be established, or
recognised under section 18, unless it
fulfils the norms and standards specified in
the Schedule.
(2) Where a school established before the
commencement of this Act does not fulfill
the norms and standards specified in the
Schedule, it shall take steps to fulfil such
norms and standards at its own expenses,
within a period of three years from the
date of such commencement.
(3) Where a school fails to fulfill the norms
and standards within the period specified
under sub-section (2), the authority
prescribed under sub-section (1) of section
18 shall withdraw recognition granted to
such school in the manner specified under
sub-section (3) thereof.
(4) With effect from the date of withdrawal
of recognition under sub-section (3), no
school shall continue to function.
(5) Any person who continues to run a
school after the recognition is withdrawn,
shall be liable to fine which may extend to
one lakh rupees and in case of continuing
contraventions, to a fine of ten thousand
rupees for each day during which such
contravention continues.
54
The Private School Revolution in Bihar
Findings from a survey in
Patna Urban
E.G. West Centre
Newcastle University
King George VI Building
Newcastle Upon Tyne
NE1 7RU
England
www.ncl.ac.uk/egwest
Baladevan Rangaraju
James Tooley
Pauline Dixon
India Institute
M-111, First Floor
Saket
New Delhi 110017
India
www.indiaI.org
ISBN 978-81-923766-0-8
Foreword by Gurcharan Das
castellar font
An
study with